The UK historic city of Durham is considered by policymakers to be the ‘jewel in the crown’ in terms of economic potential for a county that has struggled to find a niche role following the collapse of coalmining. Perceived through the eyes of a local practitioner, this paper takes a look at how a networked ensemble of actors are responding to the economic recession and planning for the upturn. The paper examines the role of place quality improvements administered through the delivery of a city masterplan to stitch together the historic city fabric with a contemporary urban aesthetic. Through the case of the (incremental) renaissance of Durham city, it is suggested that a sensitive multilayered development approach underpinned by deliberative democracy is required that responds to the needs of everyday users and local inhabitants.
No.1 Amil baba in Pakistan amil baba in Lahore amil baba in Karachi
2010 The incremental renaissance of the historic city of durham
1. Proceedings of the Institution of
=
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< Civil Engineers
Municipal Engineer 000 Lee Pugalis
Durham County
Month 2010 Issue ME000
= Pages 1–9
doi:
Council, County
Durham Economic
Partnership, School of
Paper 900048 Architecture, Planning
Received 30/10/2009 and Landscape,
Accepted 04/03/2010 University of
Newcastle-upon-Tyne,
Keywords: Durham, UK
history/town & city planning/urban
generation
;
The (incremental) renaissance of the historic city of Durham
L. Pugalis BA, DipTP, MA, MTP, MRTPI, MIED, MeRSA
The UK historic city of Durham is considered by policy- examines the role of place quality improvements administered
makers to be the ‘jewel in the crown’ in terms of to stitch together the historic city fabric with a contemporary
economic potential for a county that has struggled to find urban aesthetic, making the case that place-shaping should
a niche role following the collapse of coalmining. respond to the needs of everyday users and local inhabitants.
Perceived through the eyes of a local practitioner, this This is done by first briefly venturing into Durham county’s and
paper takes a look at how a networked ensemble of city’s rich historical legacy, as a means to situate it spatially and
actors are responding to the economic recession and economically. The role and motivations of Durham city Vision
planning for the upturn. The paper examines the role of are then examined– the networked ensemble of actors
place quality improvements administered through the spearheading its renaissance ambitions – with a particular focus
delivery of a city masterplan to stitch together the on place quality as an instrument for regeneration. The paper
historic city fabric with a contemporary urban aesthetic. closes with an analysis of the city’s response to the recession and
Through the case of the (incremental) renaissance of some reflections on practice. An alternative to attention
Durham city, it is suggested that a sensitive multilayered grabbing ‘big project’ place-shaping is highlighted, as the
development approach underpinned by deliberative author contends that a sensitive multilayered development
democracy is required that responds to the needs of approach may be more fruitful in the longer term.
everyday users and local inhabitants.
2. DURHAM COUNTY AND CITY
HISTORICAL BACKGROUND
1 INTRODUCTION Owing, in part, to the past dominance of traditional extractive
Historic cities have a crucial role to play in the social, cultural industries, County Durham has struggled to manage the
and economic development of post-industrial landscapes transition from an industrial to a postindustrial, knowledge-
(Doratli et al., 2004; English Heritage, 2005; Gilderbloom et al., driven economy. (Coal has an illustrious association with the
2009; Ren, 2008; Tiesdell et al., 1996; Wilson, 2004). The North East dating back to ancient times, but became more
preservation and restoration of historical space can produce a widespread in the thirteenth and fourteenth centuries. Coal
‘heritage dividend’ (English Heritage, 1999) in cultural and dominated the region’s industry in the seventeenth and eight-
economic regeneration. The term ‘heritagisation’ has been eenth centuries and the world’s first railways emerged using
coined to refer to the recommodification of such assets. In this horse-drawn wagons to carry coal from the local mines to
paper attention is drawn to the historic city of Durham, situated Newcastle, aptly named ‘Newcastle Roads’. ) Indeed, manufac-
in the North East of England (see Figure 1), which is considered turing remains a dominant employer of the county’s workforce
by a networked ensemble of policy actors to be the ‘jewel in the (see Table 1), but even so, the decline of coal mining during
crown’ in terms of economic potential for a county that has much of the twentieth century severely undermined the
struggled to find a niche role following the collapse of economic vibrancy of the county.
coalmining (Durham County Council, 2009). (Note: The term ‘a
networked ensemble of actors’ is here applied to describe the Although the visible scars of the county’s industrial past are
fluid coming-together of different individuals and organisations largely gone, the legacy of social and employment problems
to champion a shared cause.) remain (County Durham Economic Partnership, 2008; Robinson
et al., 2007). In 2005, gross value added (GVA) – the UK
A commonly held view by local and regional policy-makers is government’s estimation of gross domestic product (GDP), used
that Durham city possesses significant untapped potential as a as a proxy measure of the state of the whole economy – was
world class visitor destination, cultural centre and space of 65% of the national average. Such gloomy characteristics have
consumption. Such ambition is reflected in Durham’s recently become even more desperate as the impacts of the global
launched draft cultural strategy supporting its bid to become UK economic recession are deeply felt in County Durham. For
Capital of Culture in 2013 (DCC, 2009c). Perceived through the example, in recent years the county has generally recorded a
eyes of a local practitioner, this paper takes a look at how a lower job seekers allowance (JSA) unemployment rate than the
networked ensemble of actors in Durham are responding to the North East region as a whole, but with the onset of the current
economic recession and planning for the upturn. The paper recession this picture appears to be changing rapidly (Pugalis
Municipal Engineer 000 Issue ME000 The (incremental) renaissance of the historic city of Durham Pugalis 1
Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:10:26
3. County Durham (annual County Durham (% annual
Date County Durham (level) increase) increase)
Oct 2008 9 148 2903 46?5
Nov 2008 10 198 3916 62?3
Dec 2008 11 549 5099 79?1
Jan 2009 13 093 6154 88?7
Feb 2009 14 445 7295 102?0
Mar 2009 14 781 7703 108?8
Apr 2009 15 204 8110 114?3
May 2009 15 265 8314 119?6
Jun 2009 14 900 7860 111?7
Jul 2009 14 805 7453 101?4
Aug 2009 14 674 6647 82?8
Sep 2009 14 421 5914 69?5
Source: Nomis
Table 2. County Durham residents claiming JSA
identifying new opportunities that will restructure the economy, potential to play a much stronger and more influential role in
generate employment and new wealth across the county. the North of England’s economic renaissance.
Nevertheless, the county of Durham is home to a historic city; 3. DURHAM CITY VISION: THE ROLE OF
locally and regionally considered to possess untapped potential PLACE QUALITY
as a world-class visitor destination, international centre of 1000 years of evolution have created the Durham we see today;
education (Durham University is the leading university in the always changing but always the same. It is a city firmly anchored in
North of England and is consistently ranked in the world’s top both time and place, and it is eternal
20 research institutes based on the impact of its scientific (Source: Durham City Partnership, 2007: 11)
research) and as a regional retail centre and business location. Connected to the East Coast Main Line with a direct route to
Internationally renowned and home to the cathedral and castle London and the A1 motorway, Durham city has excellent
UNESCO World Heritage Site (see Figure 3), Durham city has the transport links and is also home to one of the country’s leading
Chester-
Stanley A693
le-Steet
A692
Consett
CHESTER-LE-STREET
Seaham
DERWENTSIDE
A691
A690
EASINGTON
Durham
A19
DURHAM
Peterlee
WEAR VALLEY A167
A68 A1 (M)
Spennymoor
Bishop
Auckland A689
Newton SEDGEFIELD Legend
Aycliffe District Boundary
A688
TEESDALE County Durham Unitary Council boundary
Railway
Urban Areas
Rural Population Density (No. of people per ha)
0.02-0.31
0.32-0.79
0.80-1.60
1.61-2.96
A67 2.97-5.25
5.26-9.09
9.10-15.56
15.57-26.43
26.44-44.70
44.71-75.44
N NE England Census 2001 Statistics
1:275,000_@A4 Population (Source ONS)
Total Rural Population: 212897
Source: 2001 Census, Output Area Boundaries. Crown copyright 2003. Crown copyright material is reproduced with the permission of the Controller of HMSO.
Total Urban Population: 280573
Figure 2. County Durham’s dispersed settlement pattern. County Durham’s population density reflective of its dispersed settlement
pattern. Source: EDAW (2009)
Municipal Engineer 000 Issue ME000 The (incremental) renaissance of the historic city of Durham Pugalis 3
Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:10:33
4. parking, the requirements of modern retailers, changing expectations
of visitors, the needs and demands of students, the implications of a
growing evening economy and a lack of cultural venues.
(Source: Durham City Partnership, 2007: 7)
In the late 1990s, an ensemble of public and private sector actors
commissioned David Lock Associates to produce ‘A develop-
ment framework for the heart of Durham’ (David Lock
Associates, 1998). The framework explored the development
potential of a range of sites, resulting in the completion of the
Gala Theatre, Millennium Place and Clayport library complex
which opened in 2002 (Pugalis, 2009a). Even so, opportunities
for redevelopment within the city remained limited and the
city’s outward expansion curtailed by planning policy and
transport infrastructure. A variety of actors perceived retail
facilities to be inadequate and there was a low percentage of
Figure 3. Durham Castle and Cathedral. Durham Castle and
Cathedral UNESCO World Heritage Site from the banks of multiple occupiers, which tend to ‘anchor’ sites and attract
the River Wear. additional consumers (Experian, 2006). Leisure facilities were
also considered to be underrepresented, particularly bars and
clubs to cater for the substantial student population (circa
universities, attracting some of the brightest students from the 15 000). Around this time, local and regional actors debated the
UK and other countries. The city serves the surrounding rural concept of a networked partnership entity to deliver the vision
hinterland, including a county-wide population of almost for Durham.
500 000 inhabitants, and thus has a large net inflow of
commuters. Much of its building stock dates back to the ‘Durham city vision: 2020’ is one of the North East’s key
medieval period and a high proportion of buildings are ‘listed’ transformational projects (One NorthEast, 2006, 2007); devel-
(see, for example, Figure 4). Its overall environment and oped through the Durham City Partnership set up in 2003 (The
atmosphere are qualities valued by both visitors to the city and partnership consists of Durham County Council, One NorthEast
its residents (Donaldson, 2004). Yet, despite these obvious Regional Development Agency, Durham University, the Dean
merits, there has been a perception that the city’s ‘offer’, in terms and Chapter of Durham Cathedral and the business community
of housing, leisure, retail and cultural facilities, together with through the North East Chamber of Commerce.) A masterplan
the quality of its public spaces is not meeting its full potential. for the city launched in March 2007 (Durham City Partnership,
Collectively, these have arguably led to reduced employment 2007). The 2020 vision aims to reinvigorate the county’s
opportunities and poor economic performance. economy through place quality enhancements and recasting the
city centre. Analysing the city’s ‘place assets’, the masterplan
The compact nature of the city centre – surrounded by a green considers how people use spaces and what people value. It puts
belt and further constrained by the implementation of a major forward a combination of capital and revenue strategies for
road network in the early 1970s – makes expansion difficult (see different themes and functions within the city centre.
Figure 5). Subsequently, over recent decades the city centre
offer has ‘stagnated’: Masterplans have an extensive lineage but their popularity has
As the towns and cities around changed significantly, Durham spread over the last decade or so (Bell, 2005; CABE, 2008;
remained the same and the problems of an old, established city Holmes and Beebeejaun, 2007), to a point that they are almost
centre confronting the requirements of a city centre in the late de rigueur in contemporary place-shaping practice. Yet, perhaps
twentieth century were compounded year on year – access and car because of their universal application, a variety of masterplan
styles exist, some of which are summarised in Figure 6. In the
case of Durham’s masterplan, even though it is championed by a
networked ensemble of public and private actors, it is primarily
a public-led guiding document. A notable example of a
visionary plan is that produced for Chicago in 1909, inspired by
its principal creator Daniel Burnham who proclaimed: ‘Make no
little plans. They have no magic to stir men’s blood and
probably themselves will not be realized. Make big plans; aim
high in hope and work, remembering that a noble, logical
diagram once recorded will never die, but long after we are gone
will be a living thing, asserting itself with ever-growing
insistency. Remember that our sons and grandsons are going to
do things that would stagger us. Let your watchword be order
and your beacon beauty. Think big’ (cited in Moore, 1921). Will
Alsop’s Middlehaven regeneration plans for Middlesbrough and
his masterplan for Barnsley are more contemporary examples of
Burnham’s ‘think big’ philosophy. In terms of binding plans, a
Figure 4. Mixed historic architectural fabric
well known example is the implementation of plans to
4 Municipal Engineer 000 Issue ME000 The (incremental) renaissance of the historic city of Durham Pugalis
Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:10:35
5. 4
1 2
3
5
Figure 5. Compact city centre. The compact nature of Durham city centre is compounded by ill-defined gateways, fragmentation and
severance (E David Locke Associates)
regenerate the Gorbals area of Glasgow (Tiesdell and (c) an increase in retail floor-space from 184 000 m2 in 2005 to
MacFarlane, 2007). 192 900 m2
(d) 419 new residential units
The masterplan is composed of a series of ‘strategies’, including (e) £67m private sector leverage
iconic development, modern jewels, illumination and shopping,
which are spatialised through the designation of seven city The masterplan puts down on paper the general view that Durham
‘quarters’ (see Figure 7) (Marcuse, 1989). Self-prescribed as ‘a does not need more iconic ‘big projects’, warning that even
comprehensive strategy for the city’, the masterplan has been though such projects can be politically ‘seductive’, a failure to
developed so ‘that local decisions can be made in a strategic deliver could paralyse the city’s revitalisation ambitions (Durham
way’ (Durham City Partnership, 2007: 6). A summary of the City Partnership, 2007). Instead of championing ‘big projects’ the
main priorities comprising the 2020 vision is given in Table 3. masterplan is grounded in four development principles
Collectively, these projects at an estimated total cost of £200m
intend to deliver the following outputs (a) Realisable development ambitions – anchored in market
realism with a commitment to world-class design quality
(a) 4267 net additional new jobs befitting its historic setting.
(b) an increase in office floor-space from 207 000 m2 in 2005 to (b) ‘Jewel’ development opportunities – smaller-scale inter-
300 000 ventions that establish a reputation in the city for
Municipal Engineer 000 Issue ME000 The (incremental) renaissance of the historic city of Durham Pugalis 5
Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:10:37
6. Public_
Private
Partnership
Public-led Private-led
Masterplan
Visionary Guiding Binding
_ Raise expectations
_ Set out general design principles _ Set out clear and often
_ Generate hope, hype and
prescriptive painciples (e.g. design
optimism _ Loosely coordinate individual codes)
developments
_ May have formal legal and
_ Reference document to generate planning status
development momentum _ Supplementary planning _ Used to secure development
document agreements
_ Used in design negotiations and
_ Unlikely that development will _ Often accompanied by delivery
partner buy-in
closely resemble masterplan spatial plans and funding agreements
vision
_ developments guided by spatial
_ Forge the early development of _ Development closely attune with
vision
partnerships and collaboration masterplan proposals
Figure 6. Masterplan styles. Depending on the development context and partner relations will dictate which style of masterplanning is
most appropriate. Source: author
well-crafted but small-scale new buildings that are sympa- the global economic recession and plans for the upturn (Pugalis,
thetic to their setting and yet set themselves apart through 2009b). Unlike the rest of the county, Durham city has one of the
uniqueness of form and use. highest concentrations of financial and business services in the
(c) Reinforce the cultural role of the market place – re-establish North East, which is being adversely affected by the credit crisis
it as the heart of the city of the everyday user and social life (DCC, 2009a). However, so far, the economic blow to the
of Durham. financial and service sectors has been cushioned by the boost in
(d) Improve the management and marketing of ‘assets’ – engage tourism courtesy of ‘staycations’, as people choose to visit more
local people and businesses; opening up fresh opportunities local destinations, and those employed by public institutions
for collaboration, creativity and enterprise. (which accounts for about one-third of the local workforce).
(Note: Tourism currently contributes around £1?6m to the
Guided by these four development principles, place quality county economy per day; sustaining 12 000 jobs. While this is
improvements (to date) have been sensitively administered to less than other ‘heritage cities’, such as York and Lincoln, there
stitch together the historic city fabric with a contemporary remains significant potential for growth in Durham city and its
urban aesthetic. The implementation of key strategies has helped surrounding satellite attractions.) Yet, with public sector
the city capitalise on existing assets, while some other key spending anticipated to retrench over the next few years, it
projects are entering the latter stages of the development would be premature to talk of an economic upturn materialising
process. For a summary of the current position of key projects in 2010.
see Table 4. Where possible, delivering the masterplan has been
aligned with other capital projects, including accessibility and The masterplan 2020 vision for the historic city of Durham
transport improvements. ‘reflects a premise that Durham has not yet reached its true
potential and the Vision is therefore a guide for the future’
4. RESPONDING TO THE RECESSION AND (Durham City Partnership, 2007: 6). In terms of preservation and
REFLECTIONS ON PRACTICE restoration, there exists an uneasy relationship between
Not too dissimilar to other cities in Britain and internationally, economic and cultural values. While often overlaying and
the city of Durham is facing sizeable challenges as it responds to intersecting one another, these values can sometimes clash
6 Municipal Engineer 000 Issue ME000 The (incremental) renaissance of the historic city of Durham Pugalis
Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:10:42
7. FRAMWELLGATE
CLAYPATH
VIADUCT
CENTRAL
CROSSGATE
PENINSULA
ELVET
Figure 7. Durham city centre quarters. Each ‘quarter’ is spatially distinct; composed of unique social, cultural and environmental
features (E David Locke Associates)
head-on to the extent that promoting economic values can economic landscape when the masterplan was published in
rebuff cultural values and vice versa. While setting a broad March 2007. Keeping space open, the networked ensemble of
strategic direction, space is left open for changing political actors involved in Durham’s place quality-led economic
imperatives, community aspirations and different economic resurgence have recognised the clash of values between historic
climates. The latter has been particularly important, as the post- built-environment preservation and the capitalist production of
credit crunch development climate is markedly different to the space.
Project name Description
The heart of the city: market place and Physical streetscape improvements, including lighting and signage, and ‘soft’ marketing,
vennels events and business development initiatives. It seeks to enable the market place to become
the most important commercial asset in the city, setting the tone for the whole city centre.
Physical interventions and change in the highways layout intend to reconfigure and
reprioritise space for pedestrians and enable its use as a marketplace, an events space and a
meeting place (see Figure 8).
Capitalising on existing assets Make the most of icons and assets it already has, including the castle, the cathedral, and to a
lesser extent, the university, the Gala Theatre/Millennium Place, and the integrity of the
historic city core.
Redevelopment of the former ice rink site, Mixed-use development opportunity, unique to the city centre. Potential for a
Freemans Place contemporary urban infill scheme.
World Heritage Visitor Centre, Owengate Providing a focus for the World Heritage site, with the aim of attracting more visitors and
increasing local spend.
Necklace Park An innovative proposal intended to draw together a series of existing spaces and places
along the 12 mile chain of the River Wear, stretching from Finchale Priory to Sunderland
Bridge.
Durham Riverbanks Gardens Linked to the World Heritage site and Necklace Park, a restoration project to provide a
garden attraction and enhancement of overall visitor experience
Light and dark and signage strategies Ambitious strategies intended to put the city centre at the forefront of urban lighting and
signage in the UK and Europe.
A strong emphasis on place quality runs through each of the projects contributing to the 2020 vision priorities. Source: author
Table 3. 2020 vision priorities
Municipal Engineer 000 Issue ME000 The (incremental) renaissance of the historic city of Durham Pugalis 7
Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:10:44
8. k
Leaze
lin
way
s road
e a ge
r L rid
e walk
tb
r Proposed 'living bridge' development
Ri foo
e
Prop silver
versid
ve
bl
Ca
resid d
Ba
devential
ose
ck
sed ri
Indoor
e
lopm market
ir
Town hall
We
Propo
Proposed access to
str
ent
indoor market
ee
t
s
llerie
d
rs yar
Market
work ts ga
place
Fowlep
sho
and and craf
Proposed art
galleryand
Art
and cafe
Outdoor art
exhibition space
et
tre
rs
ve
Sil
Framwe
ll gate b
ridge
Figure 8. Market place proposals. Detailed redesign proposals to augment the market place’s role as the heart of the city (E David
Locke Associates)
The charm and spatial uniqueness of Durham owes a lot to its tendencies, where a preoccupation with the past ignores the
built-heritage, urban morphology and medieval street network. potential of the present (see, for example, Gallacher, 2005). No
It is therefore imperative that a clash of values – by way of ‘right’ decision can be made about what gets preserved and why,
public debate and community participation – is actively which supports the need for deliberative democracy, whereby
encouraged. The author suggests that such deliberative democ- such practice may prevent the politico-economic imperatives of
racy can put in place the necessary safety-valve to prevent the a few, subverting the rights of the many. It is possible for a space
chrematistic pursuit of short-term profit over longer-term socio- to testify to the past and simultaneously project images of the
environmental value. Indeed, if Durham’s place assets are future.
perceived to provide ‘competitive advantage’, then insensitive
development strategies would be akin to killing the golden An early recognition that Durham city does not require a
goose. In some of Durham’s urban ‘quarters’, there is a danger proliferation of ‘big projects’ is perhaps a development
that historical elements are being selectively recycled which philosophy that other city governance ensembles may want to
could amount to the production of an internationally standar- consider, especially as planning for the upturn in likely to take
dised abstract transnational space (Ren, 2008), devoid of local place in a climate of austerity. Not wishing to portray the
spatial character. Conversely, other researchers warn of the ongoing renaissance of Durham as a resounding ‘success story’,
dangers posed by an overemphasis on nostalgic preservation it does offer practitioners and academics an interesting case of
Project title Status
The heart of the city: market place and vennels Ongoing
Capitalising on existing assets Elements complete, overall work ongoing
Redevelopment of the former ice rink site, Freemans Place Site acquired and design brief completed
World Heritage Visitor Centre, Owengate Advice to the parties
Necklace Park Ongoing
Durham Riverbanks Gardens Ongoing
Light and dark and signage strategies Completed
Projects continue to progress ‘on the ground’. Source: author
Table 4. Development status of key projects
8 Municipal Engineer 000 Issue ME000 The (incremental) renaissance of the historic city of Durham Pugalis
Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:10:49
9. how to approach the regeneration of a historic space through East’s Historic Environment. English Heritage North East
prioritised place quality enhancements. The revitalisation of Region, Newcastle.
collective spatio-historic assets, such as the city of Durham, is Experian (2006) Baseline Information for Major Centres Study:
an incremental process. Consequently, a multilayered approach Durham City. Durham, County Durham Economic
to place-shaping may prove more fruitful – politically, Partnership.
culturally, economically and environmentally – than big Gallacher P (2005) Everyday Spaces The Potential of
projects predisposed to deliver quick wins. Neighbourhood Space. Thomas Telford, London.
Gilderbloom JI, Hanka MJ and Ambrosius JD (2009) Historic
ACKNOWLEDGEMENTS preservation’s impact on job creation, property values, and
The author would like to acknowledge the receipt of Economic environmental sustainability. Journal of Urbanism:
and Social Research Council (ESRC) award PTA-030-2005- International Research on Placemaking and Urban
00902 and the support of Durham County Council. Sustainability 2(2): 83–101.
Holmes K and Beebeejaun Y (2007) City centre masterplanning
and cultural spaces: a case study of Sheffield. Journal of
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